REQUEST FOR DECISION
MEETING DATE: July 9, 2025 Report No. DRC-25-006
TO: Design Review Committee
FROM: Kirsten Dafoe, Planner II and Bill Brown, Director of Development Services
SUBJECT: Rezoning and Official Community Plan Amendment - 868 Old Esquimalt Road
RECOMMENDATION:
Recommendation
That the Esquimalt Design Review Committee recommends to Council to approve the Official Community Plan amendment and rezoning application to authorize the proposed development of a 7-unit townhouse residential development, consistent with the architectural plan and landscape plan provided by Outline Home Design at 868 Old Esquimalt Road, including reasons for the recommendation.
Body
EXECUTIVE SUMMARY:
To facilitate the proposed 7-unit townhouse development, the applicant is requesting the following amendments:
• To the Zoning Bylaw, to change the zoning of the property from RD-3 [Two Family/Single Family Residential] to a new Comprehensive Development zone [CD].
• To the Official Community Plan (Schedule H - Development Permit Areas), to change the designation of the property from Development Permit Area 3 - Enhanced Design Control Residential to Development Permit Area 6 - Multi-Family Residential.
BACKGROUND:
Relevant Policy:
Official Community Plan Bylaw, 2018, No. 2922
Zoning Bylaw, 1992, No. 2050
Local Government Act
Declaration of Climate Emergency
Parking Bylaw, 1992, No. 2011
Development Application Procedures and Fees Bylaw, 2012, No. 2791
Advisory Planning Commission Bylaw, 2012, No. 2792
Subdivision and Development Control Bylaw, 1997, No. 2175
Green Building Checklist
Purpose of the Application:
The applicant is requesting to change the zoning of the property from RD-3 [Two Family/Single Family Residential] to a new Comprehensive Development zone [CD], and to change the Development Permit Area designation of the property from Development Permit Area 3 - Enhanced Design Control Residential to Development Permit Area 6 - Multi-Family Residential. These changes are required to accommodate the proposed 7-unit townhouse residential development.
If the Official Community Plan amendment and rezoning are approved, the form and character of the buildings, landscaping, and consistency with guidelines relating to natural environment protection, energy conservation, greenhouse gas reduction, and water conservation will be controlled by a development permit that would be considered by Council at a future date.
Evaluation of this application should focus on issues related to zoning such as the proposed height, density, massing, proposed unit sizes, siting, setbacks, lot coverage, usable open space, parking, land use, fit with the neighbourhood, and consistency with the overall direction contained within the Official Community Plan.
Application Timeline:
April 7, 2025 - Application Submitted
Context:
Applicant: 868 Old Esquimalt Development Corp.
Owner: 868 Old Esquimalt Development Corp. (BC1521737)
Total Property Size: 940.3 m2
OCP Present Land Use Designation: Low Density Residential
OCP Proposed Land Use Designation: Townhouse Residential
Existing Land Use: Single-Family Residential
Proposed Land Use: Townhouse Residential
Surrounding Land Uses:
North: Single-Family Residential
South: Multiple-Family Residential, Sports Field (Brodeur Field)
East: Two-Family Residential
West: Single-Family Residential
Referral Comments:
The application was circulated internally to Building Inspection, Engineering Services, Fire, and Parks. No concerns were raised by Building Inspection or Engineering Services, and at the time of writing no comments were provided by Fire.
Parks expressed concerns regarding tree OS2, a very large and valuable protected garry oak on the neighbour’s property. Construction tolerance of this tree is limited due to its current health and conditions. Parks arborist is not comfortable with excavation for proposed driveway grade and retaining wall in the protected root zone - alternate grading to avoid or limit excavation in PRZ will be needed. Permeable paving for the driveway in the PRZ is recommended.
ANALYSIS:
OCP Analysis:
The proposed development is consistent with the Official Community Plan’s Proposed Land Use Designation of Townhouse Residential. The proposed development consists of 7 three-storey units and a floor area ratio of 0.81. The applicant is proposing community amenities to support the density greater than the 0.7 set out in the Official Community Plan in the form of one non-market townhouse to be sold and maintained at a sub-market rate.
OCP Section 5.1 states policies to:
• Consider new townhouse residential proposals with a floor area ratio of up to 0.70, and up to three storeys in height, in areas designated Townhouse Residential on the “Proposed Land Use Designation Map, provided the design responds effectively to both its site and surrounding land uses.
• Support the development of a variety of housing types and designs to meet the anticipated housing needs of residents. This may include non-market and market housing options that are designed to accommodate young and multi-generational families, the local workforce, as well as middle- and high-income households.
Section 5.2 Low Density Residential Redevelopment states an objective to strive for redevelopment and infill development that improves and enhances the appearance and livability of neighbourhoods and the community as a whole. Supporting policies in this section consistent with the proposed development include:
• Proposed redevelopment or infill within present low density residential land use designated areas should be built to high quality design and landscaping standards and respond sensitively to existing neighbourhood amenities.
Section 5.4 Affordable Housing states an objective to encourage a range of housing by type, tenure and price so that people of all ages, household types, abilities and incomes have a diversity of housing choice in Esquimalt. Supporting policies in this section relevant to the proposed development include:
• Consider bonus density, parking relaxations, or other development variances where a development proposal includes affordable, special needs, or seniors housing. This may apply to both market and non-market housing, and mixed-use proposals. A housing agreement may be entered into between the Township and the owner.
• Encourage the provision of missing middle housing types such as two-unit dwelling (duplexes), townhouses and small lot infill as one avenue to address housing affordability.
Section 11.3.2 New Development states the following policies:
• Encourage bike lockers in multi-unit residential and commercial/commercial mixed-use developments.
Section 13.3.3 Building Energy Efficiency states the following policies:
• Adopt best practices based on evolving building technologies and materials.
• Encourage the adoption of passive, efficient, and renewable energy systems in new buildings and during building retrofits.
• Investigate options for encouraging developers to achieve high energy performance in new developments through such tools as density bonusing, expedited permit approval process, rebate of development fees, revitalization tax exemption, and other incentives.
Section 13.3.6 Passenger Vehicle Alternatives states the following policies:
• Encourage the installation of electric vehicle charging infrastructure in all new multi-unit developments.
• Pursue the installation of electric vehicle charging capacity in new developments during the rezoning process.
Section 15.2.1 Heritage Values states an objective to ensure that community heritage values are considered in all land use decisions. Supporting policies in this section relevant to the proposal include:
• Use the Heritage Values provided in Appendix 1 as a guiding document when considering the impact of land use decisions on the community’s heritage.
Relevant Development Permit Area Guidelines to consider as it relates to the rezoning application include:
• In residential locations plan for ‘nature out front’; for new landscaping in front and exterior side yards use a variety of site-appropriate, native species; thereby contributing positively to pedestrian friendly urban streets, future greenways, and habitat enhanced corridors.
• Incorporation of rain gardens, bio-swales, rain barrels, and even small depressions (puddles) into landscaping will help reduce surges of stormwater entering local waterways.
• The size and siting of buildings that abut existing single- and two-unit and townhouse dwellings should reflect the size and scale of adjacent development and complement the surrounding uses. To achieve this, height and setback restrictions may be imposed as a condition of the development permit.
• New buildings should be designed and sited to minimize visual intrusion on to the privacy of surrounding homes and minimize the casting of shadows on to the private outdoor space of adjacent residential units.
• Orient buildings to take advantage of site-specific climate conditions, in terms of solar access and wind flow; design massing and solar orientation for optimum passive performance.
• Build new developments compactly, considering the solar penetration and passive performance provided for neighbouring sites, and avoid shading adjacent to usable outdoor open spaces.
• Provide space for significant landscaping including varying heights of trees, shrubs and ground covers.
• Provide usable outdoor amenities such as seating, food gardens, mini-libraries, and play spaces in semi-public areas to enhance the experience of walking and recreating in the neighbourhood.
• In residential neighbourhoods, provide space for larger trees and a second row of street trees as this will enhance the pedestrian experience by lowering wind velocity at street level, reducing excessive heating at ground level, and absorbing vehicle and other urban noises.
• Provide space for absorbent landscaping, including significantly sized trees on the site and by not allowing underground parking structures to extend beyond building walls.
Zoning Analysis:
Density, Lot Coverage, Height, and Setbacks: The following table lists the floor area ratio, lot coverage, setbacks, height, parking, and usable open space of this proposal. and setbacks. Zoning Bylaw, 1992, No. 2050 does not currently contain a zone that can accommodate this proposed development.
Parking Analysis:
Parking Bylaw, 1992, No. 2011 requires 2 parking spaces per unit to be provided for townhouse and low-density apartment zones. Parking areas are required to be constructed to meet the standards for maneuvering aisle dimensions and associated parking stall dimensions detailed in Part 14, Table 2, of the Bylaw.
The proposal incorporates 9 parking spaces to serve 7 townhouse dwelling units, which does not satisfy the requirement for 14 spaces identified in the Parking Bylaw.
It is noted that a new Parking Bylaw is currently being considered by Council. Under the proposed Parking Bylaw, the applicant is proposing more than the number of parking spaces required:
7 Townhouse Dwelling Units x 0.5 = 3.5
7 x 0.1 (visitor) = 0.7
Total = 5
OPTIONS:
1. That the Design Review Committee recommends to Council to approve the Official Community Plan amendment and rezoning application, including reasons for this recommendation.
2. That the Design Review Committee recommends to Council to approve the Official Community Plan amendment and rezoning application with conditions, including reasons for this recommendation.
3. That the Design Review Committee recommends to Council to deny the Official Community Plan amendment and rezoning application, including reasons for this recommendation.
COUNCIL PRIORITY:
Housing
REPORT REVIEWED BY:
1. James Davison, Manager of Planning, Reviewed
2. Bill Brown, Director of Development, Reviewed
LIST OF ATTACHMENTS:
1. Appendix A: Aerial Map
2. Appendix B: Applicant’s Letter
3. Appendix C: Architectural Drawings
4. Appendix D: Green Building Letter and Checklist
5. Appendix E: Survey
6. Appendix F: Arborist Report
7. Appendix G: Applicant’s Presentation